The western Allies and Stalin: Cairo and Tehrān, 1943

Relations between the western Allies and the U.S.S.R. were still delicate. Besides their inability to satisfy Soviet demands for convoys of supplies and for an early invasion of France, the Americans and the British were embarrassed by the discrepancy between their political war aims and Stalin’s.

The longest-standing difference was about Poland. While Poles were still fighting on the Allies’ side and acknowledging the authority of General Władysław Sikorski’s London-based Polish government in exile, Stalin was trying to get the Allies to consent to the U.S.S.R.’s retention, after the war, of all the territory taken from Poland by virtue of the German–Soviet pacts of 1939. On January 16, 1943, the Soviet government announced that Poles from the border territories in dispute were being treated as Soviet citizens and drafted into the Red Army. On April 25, the Soviet government severed relations with the London Poles, and Moscow subsequently began to build up its own puppet government for postwar Poland.

Besides the quarrel over Poland, the western Allies and the U.S.S.R. were also at variance with regard to the postwar fate of other European states still under German domination; but the Americans and the British were really more interested in maintaining the Soviet war effort against Germany than in insisting, at the risk of offense to Stalin, on the detailed application of their own loudly but vaguely enunciated war aims.

Sextant, the conference of November 22–27, 1943, for which Churchill, Roosevelt, and Chiang Kai-shek met in Cairo, was, on Roosevelt’s insistence, devoted mainly to discussing plans for a British–U.S.–Chinese operation in northern Burma. Little was produced by Sextant except the Cairo Declaration, published on December 1, a further statement of war aims. It prescribed inter alia that Japan was to surrender all Pacific islands acquired since 1914, to retrocede Manchuria, Formosa, and the Pescadores to China, and to give up all other territory “taken by violence and greed”; and, in addition, it was stipulated that Korea was in due course to become independent.

From Cairo, Roosevelt and Churchill went to Tehrān, to meet Stalin at the Eureka conference of November 28–December 1. Stalin renewed the Soviet promise of military intervention against Japan, but he primarily wanted an assurance that “Overlord” (the invasion of France) would indeed take place in 1944. Reassured about this by Roosevelt, he declared that the Red Army would attack simultaneously on the Eastern Front. On the political plane, Stalin now demanded the Baltic coast of East Prussia for the U.S.S.R. as well as the territories annexed in 1939–40. The main communique of the conference was accompanied by a joint declaration guaranteeing the postwar restoration of Iran. Returning to Cairo, Roosevelt and Churchill spent six more days, December 2–7, in staff talks to compose their differences on strategy. They finally agreed that “Overlord” (with Eisenhower in command) should have first claim on resources.

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